By Phar Kim Beng, PhD

Introduction

The Chairmanship of the Association of Southeast Asian Nations (ASEAN) is a crucial yet often misunderstood leadership role.

Unlike the structured presidency of the European Union, ASEAN’s chairmanship rotates annually among its 10 member states. This system ensures equitable participation but also leads to variation in leadership styles and priorities.

The ASEAN Chair’s role is primarily facilitative, tasked with agenda-setting, convening meetings, and managing crises, rather than exercising executive power.

Historically, the ASEAN Chair has played a significant role in shaping regional diplomacy. Countries that have held this position – including Malaysia, Indonesia, Singapore and Vietnam – have each left distinct imprints on ASEAN’s trajectory.

The evolution of the ASEAN Chairmanship, its responsibilities, historical significance, and the challenges it faces, is not beyond comprehension. One just has to pay attention to it.

The Evolution of the ASEAN Chairmanship

ASEAN was founded on 8 August 1967 by Indonesia, Malaysia, the Philippines, Singapore and Thailand.

The concept of a rotating chairmanship was embedded in its structure from the outset, ensuring that no single member dominated ASEAN’s agenda.

In the early years, the ASEAN Chair’s role was largely administrative – organising meetings and issuing statements.

However, as ASEAN expanded and assumed greater economic and security responsibilities, the chairmanship evolved into a more active leadership position. The adoption of the ASEAN Charter in 2008 formally institutionalised the Chair’s responsibilities, including agenda-setting, external representation, and crisis management (Severino, 2006).

Key Responsibilities of the ASEAN Chair

1. Agenda-Setting and Policy Direction

The Chair influences ASEAN’s priorities, steering discussions on trade, security, and regional cooperation. For instance, when Malaysia chaired ASEAN in 2015, it prioritised the establishment of the ASEAN Economic Community (AEC), promoting trade liberalisation and economic connectivity (Nesadurai, 2017).

2. Hosting ASEAN Summits and Ministerial Meetings

The Chair hosts two ASEAN Summits annually, alongside numerous ministerial and working-level meetings. These forums serve as crucial platforms for engaging global powers such as the United States, China, Japan, and the European Union (Weatherbee, 2020).

3. Crisis Management and Diplomatic Mediation

The Chair is expected to manage regional crises, though its effectiveness depends on the incumbent country’s diplomatic leverage. In 2011, Indonesia’s chairmanship played a key role in mediating tensions between Thailand and Cambodia over the Preah Vihear temple dispute (Emmers, 2012).

Similarly, Malaysia’s 2015 chairmanship had to respond to the Rohingya refugee crisis, carefully balancing ASEAN’s non-interference principle with humanitarian concerns.

4. External Representation

The ASEAN Chair represents the bloc in major international forums such as the ASEAN Plus Three (China, Japan, South Korea), the East Asia Summit, and the ASEAN Regional Forum. This role is increasingly significant amid intensifying U.S.-China competition in Southeast Asia (Goh, 2019).

Malaysia’s Chairmanship: A Historical Perspective

Malaysia has held the ASEAN Chair several times, each tenure reflecting the changing regional context:

1977: Malaysia’s first chairmanship came a decade after ASEAN’s founding. It hosted ASEAN’s first-ever summit, laying the groundwork for institutionalised dialogue among member states.

1997: Malaysia’s second chairmanship coincided with the Asian Financial Crisis, during which it advocated for regional financial cooperation, a precursor to the Chiang Mai Initiative on currency swaps (Nesadurai, 2017).

2015: Malaysia’s chairmanship marked the launch of the ASEAN Economic Community (AEC), aiming to integrate the region into a single market and production base. Malaysia emphasised reducing trade barriers and enhancing infrastructure connectivity (Severino, 2006).

Challenges Faced by ASEAN Chairs

Despite its significance, the ASEAN Chairmanship faces several challenges:

1. Consensus-Based Decision-Making

ASEAN operates on the principle of consensus, limiting the Chair’s ability to push through contentious policies. This was evident in 2012, when Cambodia, as Chair, prevented ASEAN from issuing a joint communiqué on the South China Sea, reflecting its close ties with China (Weatherbee, 2020).

2. Geopolitical Pressures

The ASEAN Chair must navigate the interests of major powers. For example, Thailand’s 2019 chairmanship faced U.S.-China tensions over trade, technology, and military influence in the South China Sea (Goh, 2019).

3. Crisis Response Limitations

ASEAN lacks enforcement mechanisms, making it difficult for the Chair to manage regional crises. Myanmar’s 2021 coup highlighted these constraints when Brunei Darussalam, as Chair, struggled to mediate ASEAN’s response (Emmers, 2012).

Conclusion: The Future of the ASEAN Chairmanship

The ASEAN Chairmanship is a pivotal yet constrained role. While it allows each member state to shape ASEAN’s agenda, the consensus principle limits its authority on divisive issues.

However, strong leadership – such as Malaysia’s 2015 chairmanship – can influence ASEAN’s direction, particularly in economic integration and crisis diplomacy.

Moving forward, the effectiveness of ASEAN Chairs will depend on their ability to balance regional unity with external pressures. With increasing geopolitical tensions and security challenges, future ASEAN Chairs must navigate a complex landscape while upholding ASEAN’s core principles of neutrality, inclusivity, and cooperation.

-- BERNAMA

Phar Kim Beng, PhD, is Professor of ASEAN Studies at International Islamic University of Malaysia.

References:

Emmers, R. (2012). Security and power balancing: ASEAN and East Asian international relations. Routledge.

Goh, E. (2019). The struggle for order: Hegemony, hierarchy, and transition in post–Cold War East Asia. Oxford University Press.

Nesadurai, H. (2017). Governing regional integration for development: ASEAN economic governance. Routledge.

Severino, R. C. (2006). Southeast Asia in search of an ASEAN community: Insights from the former ASEAN Secretary-General. ISEAS–Yusof Ishak Institute.

Weatherbee, D. E. (2020). International relations in Southeast Asia: The struggle for autonomy. Rowman & Littlefield.